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TRANSCRIPT
In his 2008 report entitled, Contemporary HBCUs: Considering Institutional Capacity and
State Priorities, James T. Minor analyzed enrollment, funding, and advanced degree pat-
terns at Historically Black Colleges and Universities (HBCUs) in Alabama, Louisiana, Mis-
sissippi, and North Carolina. His findings exposed the underlying racial disparities in state
and federal allocations to HBCUs. He also drew on enrollment and graduate program
data to illuminate the vital function of HBCUs. In this report, we evaluate how enroll-
ment, funding, and advanced program distribution have changed since Minor published
his original findings.
We used the most recent data available from the National Center for Education Statistics’ (NCES)
Integrated Postsecondary Education Data System (IPEDS) to shed light on enrollment, state ap-
propriations, and completion data for HBCUs. We also drew upon current state appropriations
data from state government websites, institutional websites and state education websites to
procure advanced degree program information, including specialist and post-master’s programs.
The following questions guided our analyses:
Have state and federal funding patterns in higher education become more equitable?
• IsBlackstudentenrollmentincreasingatpublicPredominantlyWhiteInstitutions(PWIs)?
• Havetherebeensubstantialchangesinadvanceddegreeprogramdistribution?
• HasenrollmentinpublicHBCUscontinuedtodecline?
• HastheenrollmentofotherracialandethnicstudentsincreasedatpublicHBCUs?
Our findings confirm, with some noteworthy exceptions, much of what Minor concluded in his
2008 report:
• Whenmakingappropriations,stategovernmentsprioritizePWIsandflagshipinstitutions.
• BlackstudentenrollmentinPWIshasincreasedbuthasstagnatedintwostates,mirroringthe growth in the Black population overall.
• HBCUsdonothaveanadequateshareinthedistributionofadvanceddegreeprograms.
• TheethniccompositionofHBCUsindicatestheneedforthemtocontinuetobroadentheir
reach and expand their mission.
William Casey Boland &
Marybeth Gasman
ReseaRch Team
Thai-Huy NguyenSeher AhmadHeather Collins
Special thanks to Joni Finney, Practice
Professor in Higher Education at the
University of Pennsylvania’s Graduate
School of Education.
america’s Public hBcUs: A Four State Comparison of Institutional Capacity and State Funding Priorities
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conTemPoRaRy conTexT
The recession of 2008 had a devastating impact on higher education across the United States, but
HBCUs were particularly hard hit. Because Minor completed his report on the eve of the reces-
sion, the enrollment and funding trends he detailed were based on pre-recession data.
Given many states’ diminished post-recession coffers, the “climate of accountability and efficien-
cy” (28) noted by Minor has become a dominant theme in contemporary higher education finance.
Alongtheselines,manystatepolicymakersarefloatingtheideaofallocatingfundingbasedon
performance targets, such as degree completion rates and other outcomes. Although the efficient
distribution of funding and quantifiable evidence of its use is laudable, policymakers and higher
education leaders must recognize that a substantial number of HBCU students are from low-
income families and mostly first-generation students. Such students are often unlikely to graduate,
regardless of the institution they attend (Mercer and Stedman, 2008). A categorical application
of performance funding could harm HBCU students by limiting state funding to their institutions.
For decades, reformers have viewed performance funding as a necessary corrective to the deeply
flawedenrollment-basedfundingformulasthathavebeenomnipresent.Morerecentreformsto
performance funding have included the use of metrics that measure improvement and change in
ways that matter differently for different institutions. Such funding reforms may represent a more
equitable approach toward HBCUs.
Disregard for the nuances of an HBCU education is common among those who advocate for
their closure. For decades, assorted critics in academia, government, media, and business have
called the mission of HBCUs into question. The culture of efficiency pervasive in the contempo-
rary national education narrative serves as the rallying cry for these critics. They view HBCUs as
anachronistic appendages of a racist past. Those seeking to close HBCUs fail to recognize their
vast potential for the future—not just for students, but for the country as a whole. HBCUs serve as
a direct pipeline to the middle class and must continue to serve this purpose.
Besides questioning the continued relevancy of HBCUs in a falsely labeled “post-racial world,”
HBCU critics point to undergraduate completion statistics as evidence of these institutions’ in-
ability to educate students. Such a critique fails to acknowledge that many (though not all) HBCU
students come from low-income backgrounds, and such students tend to grapple with financial
problems and other life stressors that have a negative impact on their academic success. Students
with these characteristics demonstrate similar completion rates at all institutions, not just HBCUs.
So even though the 6-year graduation rate for HBCUs tends to be below 50%, HBCUs provide
these students more attention and support than they would receive at other institutions, creating
a more rewarding experience (Gasman, 2013; Adams, 2013a).
It is at the graduate level that HBCU success can better be quantitatively demonstrated. As much
as 40% of all African Americans pursuing graduate education in STEM disciplines completed their
undergraduate education in HBCUs, even though only 11% of all African American students at-
tend HBCUs (Gasman, 2013; Matthews, 2011; National Science Foundation, 2013).
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sTaTe higheR edUcaTion conTexT
AlAbAmA. Alabama has 14 four-year public colleges and universities (since Minor’s study, Troy
University was consolidated into one campus); among them are two HBCUs: Alabama A&M Uni-
versity and Alabama State University.
The Alabama Commission on Higher Education (ACHE) coordinates all higher education. Its mis-
sion is to foster coordination amongst all institutions, manage student aid programs, and conduct
other regulatory functions. ACHE is a 12-member coordinating board appointed by the Governor,
Lieutenant Governor, and Speaker of the House with confirmation by the Senate (ACHE, 2013).
ACHE issued “Forging Strategic Alliances: State Plan for Higher Education 2009-2014” to articu-
late its mission of aligning higher education with statewide goals. This document concedes that
the state’s education system, workforce, and overall wealth are weakened by racial disparities in
higher education enrollment and attainment (ACHE, 2009).
louisiAnA. Louisiana has three university systems. The University of Louisiana system contains
one HBCU (Grambling State University), while the Louisiana State University system contains no
HBCUs. The third system is the Southern University system, which is the nation’s only statewide
HBCU system. It includes Southern University and A&M College, Southern University at New
Orleans, and Southern University at Shreveport, as well as the Southern University Law Center
and the Southern University Agricultural research and Extension Center.
The Board of regents oversees higher education in the state. Its full-time decision-making staff is
headed by the Commissioner of Higher Education. The board also includes 15 volunteer members
appointed by the Governor (Louisiana Board of regents, 2013). As part of its constitutionally au-
thorized mission, the Board created the Master Plan for Public Postsecondary Education in 2001
and released an updated version in 2011. The goals of the Master Plan are increasing educational
attainment to the average of Southern regional Education Board (SrEB) states by 2025, empha-
sizing the importance of science and technology, and fostering more accountability and efficiency
(Louisiana Board of regents, 2012).
Washington
Oregon
California
Nevada
Utah
ArizonaNew Mexico
Colorado
Idaho
Montana
Wyoming
North Dakota
South Dakota
Nebraska
Kansas
Oklahoma
TexasLouisiana
Mississippi Georgia
Alabama
Minnesota
Wisconsin
Michigan
Iowa
Illinois
Missouri
Arkansas
Florida
South Carolina
North CarolinaTennessee
Kentucky
Indiana
Ohio
West Virginia Virginia
Delaware
New Jersey
Md
Pennsylvania
New YorkR.I.
Mass.
N.H.
Vt.
Conn.
Maine
Hawaii
Puerto Rico
Alaska
15
4
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ameRica’s PUBlic hBcUs: A FOUr STATE COMPArISON OF INSTITUTIONAL CAPACITy AND STATE FUNDING PrIOrITIES
ToTal hBcUs in alaBama, loUisiana, mississiPPi & noRTh caRolina
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ameRica’s PUBlic hBcUs: A FOUr STATE COMPArISON OF INSTITUTIONAL CAPACITy AND STATE FUNDING PrIOrITIES
mississippi. As in Alabama and Louisiana, a coordinating board—the Board of Trustees of the
State Institutions of Higher Learning, manages public 4-year higher education in Mississippi. Its 12
members are appointed from the three Mississippi Supreme Court districts. The Board deter-
mines policy and financial oversight for the state’s eight 4-year public institutions, including three
HBCUs: Alcorn State University, Jackson State University, and Mississippi Valley State University
(Board of Trustees, 2013).
north CArolinA. The state of North Carolina dwarfs the other three states in population and
overall enrollment. The University of North Carolina (UNC) system includes 17 institutions (UNC
incorporated the North Carolina School of Science and Mathematics, though this institution is a
high school and was not included in this study). UNC includes five HBCUs, some of which account
for the largest enrollments in this study (North Carolina Central University, Fayetteville State
University, North Carolina A&T University, Elizabeth City State University, and Winston-Salem
State University). The UNC Board of Governors manages and creates policy for all public higher
education in the state (Board of Governors, 2013).
enRollmenT in The sTaTes
Current enrollment data confirms what Perna et al. found in their study (2006): African American
students continue to be under-represented at four-year public PWIs. This is especially true for
Blackstudentenrollmentinpublicflagshipuniversities.Withsomeexceptions,Minor’s2008
findings remain relevant to the most recent enrollment context for which data is available. Total
HBCU enrollment across the four states increased from 54,774 in 2001 to 63,134 in 2011. yet this
statistic belies a complex enrollment picture, as we detail below.
AlAbAmA. Enrollment in Alabama PWIs increased by 36% between 2001 and 2011. HBCU total
enrollment declined somewhat, despite a modest increase after 2009.
The Black student population in HBCUs declined slightly, from 8,654 in 2001 to 8,476 in 2011. yet
the actual percentage of the Black student population in HBCUs increased somewhat, from 92% in
2001 to 95% in 2011. Black student enrollment in Alabama PWIs has slowly improved, increasing
from 17% in 2001 to 20% in 2011.
louisiAnA. As Minor noted in his report, the impact of Hurricane Katrina on higher education
enrollment in the state was substantial. This explains the staggering declines in 2005, especially at
New Orleans institutions. Despite some small increases, the overall enrollment trend in Louisiana
has been downward since 2001.
Black student enrollment in Louisiana PWIs stagnated at 17% between 2001 and 2011. More
pronounced was the decline in black enrollment in Louisiana HBCUs, which dropped 20%.
mississippi. Mississippi is the only state in the study to demonstrate growth in all enrollment
ethnicity categories between 2001 and 2011. Enrollment in all Mississippi 4-year public institu-
tions rose during this time. PWI total enrollment expanded nearly 20%, while total HBCU enroll-
ment increased by 12%.
Black student enrollment in Mississippi PWIs increased by 48% between 2001 and 2011. In 2001,
Black students made up about 20% of the PWI student population. In 2011, Black student per-
centage of the total student population increased to 25%. The Black student population rose 8% in
HBCUs during the same period.
north CArolinA. All four-year public institutions experienced enrollment gains between 2001
and 2011 in North Carolina. Interestingly, overall HBCU enrollment grew by 42%, compared to
27% at PWIs.
The Black student population increased by 39% in North Carolina HBCUs.
ALABAMA
It is critical that HBCUs continue to
attract diverse student populations. Yet
HBCU efforts could be hindered by state-
wide policies such as those in Alabama.
In 2011, Alabama passed HB 56 (which
it revised in 2012 with HB 658). The law
is considered the toughest anti-immi-
gration law in the United States. Among
its many stipulations, HB 56 prevents
illegal and many legal immigrants from
attending public higher education institu-
tions (Scott, 2012; ACLU, 2011). The
atmosphere of intolerance casts a pall
over Alabama’s racial and ethnic minority
communities, especially Latinos. HBCUs
in Alabama have experienced a gradual
increase in Latino enrollment.
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ameRica’s PUBlic hBcUs: A FOUr STATE COMPArISON OF INSTITUTIONAL CAPACITy AND STATE FUNDING PrIOrITIES
Despite this growth, the Black enrollment in 2011 as a percentage of total HBCU enrollments de-
clined slightly, from 85% in 2001 to 80% in 2011. yet Black student enrollment in North Carolina
PWIs stalled at 11%.
Black student gains in PWIs can be attributed at least in part to desegregation legislation. As
Minor (2008) noted, a primary fear of desegregation legislation was that it would incite a mass
exodus of Black students from HBCUs to PWIs. While Black student enrollment did decrease in
HBCUs immediately following the end of legalized segregation, enrollment patterns show that
this decline has mostly leveled off and has reversed in Mississippi and North Carolina. A troubling
trend is African American enrollment in Louisiana and North Carolina PWIs remaining static.
Further research is warranted to explore this pattern.
eThniciTy changes in hBcU enRollmenT
NCES data reveal that while Black student enrollment generally increased at PWIs, HBCUs have
seen a rise in the number of other racial and ethnic groups. Nonetheless, African Americans con-
tinue to make up the majority of all HBCUs.
The national HBCU averages for racial and ethnic make-up include 76% Black, 1% multiracial,
13% White, 3% Latino, 1% nonresident alien, 5% race unknown, and 1% Asian/Native Hawaiian or
Pacific Islander/American Indian/Native Alaskan (Gasman, 2013).
White enrollment at HBCUs has decreased, though by varying degrees in each state. White
decline in enrollment was most pronounced in Alabama (a 58% decline between 2001 and 2011;
while the overall White population has increased, suggesting signs of increased segregation. In
Louisiana, Mississippi, and North Carolina, White student decline in HBCUs was gradual. White
student enrollment increased in those three states until 2007, but has been decreasing since.
Despite the recent decline, the number of White students enrolled in Louisiana’s HBCUs is actu-
ally higher in 2011 than in 2001. In North Carolina, White students comprise roughly 10% of all
HBCU enrollments. At 2,763, White students are more prevalent in North Carolina HBCUs than in
HBCUs in Alabama, Louisiana, or Mississippi.
The major development in HBCU enrollment is the expo-
nential increase in Latino students. In every state in this
study, Latino enrollment more than doubled in each states’
HBCUs. In Mississippi, Latino student enrollment expanded
by nearly seven times the 2001 level. Such growth mirrors
the increase of Latinos and Hispanics in the U.S. According
to the 2010 U.S. Census, “more than half of the growth in the total population of the United States
between 2000 and 2010 was due to the increase in the Hispanic population” (p. 3, 2011).
NCES combines Asian Americans, Pacific Islander, Native Alaskan, Hawaiian, and American Indian
into a single category for many of the years between 2001 and 2010. This group saw mixed enroll-
ment changes in HBCUs. In Alabama, it declined nearly 50% and fell slightly in Louisiana HBCUs;
however, this group increased by nearly 200% in Mississippi and 75% in North Carolina.
The nonresident alien category saw a surprising decline in Alabama HBCUs (86%) between 2001
and 2011. yet in Louisiana HBCUs, nonresident alien students increased to five times the 2001
level in 2011, with much of this surge occurring in 2005, the year of Hurricane Katrina.
There is some debate over whether the shift in racial and ethnic composition of HBCUs compro-
mises or changes their initial mission (Gasman, 2013; Minor, 2008). But it’s important to keep in
mind that HBCUs have a long history of educating students at a lower cost and arguably with more
attentive care than many of their PWI peers. Black and Latino students are expected to make up
nearly 50% of all elementary and secondary education students in the United States within the
next 10 years, and we need to ensure that our 4-year colleges and universities have capacity for
these students. HBCUs can aid in serving these students (Adams, 2013a).
LOUISIANA
Elected in 2007, Governor Bobby Jindal
has articulated a higher education agen-
da anchored in accountability. His efforts
in higher education have prioritized
performance and highlighted completion.
State funding for higher education has
declined each year since Jindal’s election.
A recent Grapevine report (2013) ranked
Louisiana third in the nation in cuts to
higher education between 2008 and
2013 (Alabama came in fourth).
The major development in HBCU enrollment is the exponential increase in Latino students.
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ameRica’s PUBlic hBcUs: A FOUr STATE COMPArISON OF INSTITUTIONAL CAPACITy AND STATE FUNDING PrIOrITIES
FUnding
S TAT E F U N D I N G TO H I G H E r E D U C AT I O N
In keeping with the fiscal trend across the United States, all four states saw decreased state alloca-
tions. The downward trajectory preceded the 2008 recession, though state funding has plum-
meted since then. A slight uptick in funding in fiscal years 2012 and 2013 is promising. yet most
education finance policy experts agree that public institutions throughout the United States will
likely not enjoy a return to pre-recession funding levels.
The states received some federal assistance in the form of the American recovery and reinvest-
ment Act of 2009 (ArrA) funding. Although these funds provided a much-needed economic lift
after the devastation of the recession, they were not intended to be long-term sources of funding
(National Center for Public Policy and Higher Education, 2009; Kabaker, 2010). ArrA funding
expired in 2012 (SHEEO, 2013).
The recession of 2008 led to deep cuts in state funding for most public higher education institu-
tions, but HBCUs were hit especially hard. HBCUs are more susceptible to economic downturns
because a large portion of their funding derives from tuition, and most HBCU students come from
low-income households, which have fewer resources to buffer the impact of an economic down-
turn. Furthermore, HBCUs tend to have smaller endowments than their PWI counterparts, making
them more susceptible to economic shocks (Gasman, 2009).
42 states passed reduced budgets in 2009 with drastic reductions to higher education appropria-
tions (Adams, 2013b; ACHE, 2009). Planning documents for most of the states included in this
study concede the new economic reality. As an Alabama study grimly acknowledged, “Alabama
higher education faces grave challenges because of unpredictable state operating budget support”
(ACHE, 2009, p. 9).
Despite the gloomy economic outlook during the darkest moments of the recession, some institu-
tions have seen small funding increases since 2008-2009. North Carolina and Mississippi enjoyed
substantial funding boosts after years of decline (though North Carolina’s current governor
recently warned of looming cuts). Alabama had a mixed picture, while Louisiana continued to slash
funding to all higher education institutions. When parsing the funding per institution, it is clear
that there has been little improvement in achieving parity between HBCUs and PWIs. Some HB-
CUs have enjoyed a boost in state allocations (especially in North Carolina). However, on average,
HBCUs continue to be funded at a lower level than PWIs.
Underfunding HBCUs compromises their ability to attract students and to compete with more
prestigious and well-resourced PWIs (Gasman, 2010). Over the past few decades, a higher educa-
tion arms race broke out, with institutions spending exorbitant funds to construct state-of-the-art
facilities. Many students select colleges and universities based on the condition of dorms, dining
hall selections, and other facilities, as well as the reputation of faculty and history of valuable
opportunities to promote their achievement after graduation. By being routinely short-changed,
many HBCUs cannot compete with other institutions that can afford to offer sleek ultra-modern
facilities.
A C LO S E r LO O K AT S TAT E - B y- S TAT E F U N D I N G
AlAbAmA. The Alabama legislature allocates funding directly to its higher education institutions.
ACHE coordinates the budget requests from all institutions and presents them to the governor
and legislature. As of Fy 2012, Alabama does not use any standard funding formulas to allocate
support for higher education (ACHE, 2008; SHEEO, 2012).
Following two decades of legal wrangling, the case of Knight v. State of Alabama was settled on
October 13, 2006. In that case, the federal court found that many state higher education poli-
cies (including funding policies) were racially discriminatory and fostered segregation. The court
MISSISSIPPI
The Mississippi Board of Trustees for
State Institutions of Higher Learning
recently released statistics indicat-
ing a slight drop in Mississippi public
4-year higher education enrollment for
2012-2013. Though enrollment rose at
Jackson State University, it declined in
Alcorn State University and Mississippi
Valley State University. An Associated
Press article quotes Higher Education
Commissioner Hank Bounds attributing
the declines to recent changes to Pell
Grants (Amy, 2013). Alcorn’s enrollment
had been increasing until 2012, while
Mississippi Valley State has seen steadily
declining enrollment in recent years (IHL,
2013).
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ameRica’s PUBlic hBcUs: A FOUr STATE COMPArISON OF INSTITUTIONAL CAPACITy AND STATE FUNDING PrIOrITIES
ordered a $600-million, 30-year campus renovation plan. This ruling had a profound effect on
Alabama State University and Alabama A&M University, enabling new programs and construction
and increased need-based aid for African American students.
Alabama state funding levels were, for the most part, significantly lower in 2011-2013 than in
2008 and earlier. The University of Alabama system declined by almost $75 million, dropping
from approximately $533 million in 2007 to approximately $458 million in 2012-2013. Alabama’s
pair of 4-year public HBCUs had two different experiences. Alabama A&M University received
approximately $6.5 million less in 2012-2013 than in 2007. Alabama State University enjoyed a
slight increase of roughly $100,000 between 2007 and 2012-2013.
louisiAnA. Louisiana relies on a complex method for allocating state funding. State general
fund appropriations are provided to a state higher education board (Board of regents, 2013). The
board distributes this funding to the higher education system boards, which then disperse it to
the institutions. State appropriations were previously based on a base-budget formula. In 2010,
the state moved toward performance funding for all institutions (Louisiana Board of regents,
2012). Appropriations are tied to the LA GrAD Act, which establishes performance targets. These
include retention and completion rates (Louisiana Board of regents, 2013).
Louisiana has severely cut funding to all public 4-year institutions. Louisiana State University—the
largest public university in the state—went from just over $200 million in 2007 to approximately
$150 million in 2012, a 25% drop. yet the institutions with the largest percentage decreases are
the state’s 4-year public HBCUs. Southern A&M University (including Southern Law) experienced
the sharpest cut, at 45%. Funding for Grambling State University in 2012 was 36% lower than in
2007, and Southern University at New Orleans received 35% less funding during the same time-
frame. The only PWI in Louisiana that experienced a decrease as substantial as these HBCUs is the
University of New Orleans, which saw a drop of 32%.
Louisiana’s perennial disinvestment in higher education warrants further analysis. Like other Gulf
States, Louisiana faces challenges in developing a more knowledge-based employment sector.
Louisiana’s economy, in particular, is propelled by agriculture and fuel production, sectors that rely
heavily on low-skilled jobs that do not require college education. This correlates to Louisiana hav-
ing amongst the lowest postsecondary education attainment rates in the country. The prevalence
of low-skilled labor and historic lack of investment in higher education continues to lead to low
and decreasing state support (Weerts, Sanford, & reinert, 2013).
Another element with considerable implications for higher education funding is the unique bud-
getary power of the governor. During times of economic distress, the governor has the power to
cut funding in any category up to 3% without legislative approval. Decreases to higher education
funding over the past several years are attributable to this gubernatorial ability (Weerts, Sanford,
& reinert, 2013).
mississippi. In 2013, the Mississippi Board of Trustees instituted what it believed to be a more
equitable funding formula for allocations to public colleges and universities. A percentage of fund-
ing will cover operating costs, with smaller institutions receiving a larger amount. Higher Educa-
tion Commissioner Hank Bounds noted that the change is intended to rectify the overfunding of
bigger public universities. Additional funding will be allocated according to some performance
targets, such as degree completion (Associated Press, 2013a).
Mississippi HBCUs were significantly affected by the outcome of Ayers v. Fordice. This case, which
was settled by the U.S. District Court for the Northern District of Mississippi in 2002 (Mississippi
Legislature, 2013), sought to redress the consequences of the segregated system of education in
Mississippi. The court ordered the Mississippi Legislature to provide $35 million towards funding
various academic and developmental education programs, capital projects, endowments, and
other program improvements (Mississippi Legislature, 2013; Associated Press, 2010). Using Ayers
funding, each of the state’s three HBCUs added graduate and professional programs. Ayers funding
expired in 2012 (Associated Press, 2010).
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ameRica’s PUBlic hBcUs: A FOUr STATE COMPArISON OF INSTITUTIONAL CAPACITy AND STATE FUNDING PrIOrITIES
Mississippi HBCUs experienced significant cuts since 2007. Alcorn State University—a research
institution—saw a 32% decline in funding. Jackson State University—also a research university—
saw a similarly sharp decrease of 26% since 2007. Mississippi Valley State University received
less as well, with a 25% drop since 2007 (and nearly $3 million below its 2011 total). Clearly, the
revised funding formula did not bode well for public institutions. It remains to be seen how the
most recent funding formula revision will affect these institutions.
The revised funding formula is expected to improve the equity of state appropriations to HBCUs.
The new funding method will increase the weight of graduate and technical courses and will
include some performance-based funding based on course completion (Amy, 2013; HBCU Digest,
2013). Because the state’s three HBCUs offer graduate-level courses, they are expected to benefit
from the new funding formula.
north CArolinA. The UNC system includes 17 campuses and approximately $2.5 billion in
annual funding. The North Carolina General Assembly (NCGA) uses a base-budget funding for-
mula (derived from the previous year’s budget and an estimate of the following year’s operating
costs) and provides funding directly to the institutions. About 20% of UNC’s total operating bud-
get comes from state appropriations (UNC, 2013). UNC institutions are highly ranked and receive
significantly more funding than those in Alabama, Louisiana, and Mississippi.
Unlike the other states covered in this report, North Carolina weathered the recession well. State
funding is higher at all public 4-year institutions in 2012-2013 when compared to 2007. HBCUs
benefitted from increased state appropriations, especially North Carolina A&T State University
(20%) and North Carolina Central University (28%).
Per Full Time Enrolled (FTE) student funding is revelatory for detecting discrepancies in funding
levels. Though North Carolina HBCUs enjoy higher funding levels than any in Alabama, Louisiana,
or Mississippi, the highest per FTE HBCU (Winston-Salem University at $10,618 in 2011), is still
nearly half that of UNC Chapel Hill ($17,992) and North Carolina State University ($15,558).
Governor Pat McCrory announced plans to cut over $130 million in funding to UNC. Some legisla-
tors questioned whether or not to merge and close some institutions within the UNC systems. The
increased focus in the state on program duplication and underperformance could thrust UNC’s
five HBCUs into the crosshairs of lawmakers eager to trim costs regardless of institutional service
and mission. Governor McCrory also made clear his desire to push UNC toward performance
funding (HBCU Digest, 2013).
F E D E r A L F U N D I N G A N D H B C U s
Federal funding to HBCUs is mandated by Title III, Part B, Sections 323 and 326 of the Higher
Education Act of 1965—“Strengthening Historically Black Colleges and Universities - Undergradu-
ate and Graduate Programs.” Title IIIB is the most substantial source of federal financial assistance
to HBCUs (U.S. Department of Education, 2013; 2009). Title IIIB funding consists of grants to sup-
port a multitude of critical functions including fiscal management, physical plant construction, and
academic services (White House Initiative on Historically Black Colleges and Universities, 2013).
Like state funding, federal funding for HBCUs has routinely been eviscerated. An almost $30-mil-
lion decrease in the Fy 2011 base of federal funding budget appropriations had a chilling effect on
HBCUs (U.S. Department of Education, 2011). Title IIIB dollars are crucial to the fiscal health of
HBCUs. They fund numerous functions vital to educating students and boosting the local economy
where HBCUs are located. Title IIIB funding also enables HBCUs to compete with better-funded
and better-recognized institutions (President’s Board of Advisors on Historically Black Colleges
and Universities, 2012).
Many HBCUs also benefit from federal research funding. yet HBCUs do not receive an equitable
level of such funding when compared to other institutions (Gasman, 2010; Matthews, 2011). Fed-
eral research funding tends to be funneled to select institutions. The National Science Foundation
(NSF) found that the top 100 institutions (in terms of r&D expenditures) received 80% of federal
NOrTH CArOLINA
After several years of stabilized state
financial support for higher education,
North Carolina cut funding to 13 of 16
UNC institutions in 2013. Many of the
institutions predict layoffs, including the
state’s HBCUs (Associated Press, 2013b).
The total state allocation is $115 million
less than the previous year. In a letter sent
to the UNC community, UNC President
Tom Ross (2013) commented on the
need for UNC to impress upon lawmakers
the importance of all UNC institutions’
efforts.
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research funding in 2006. A 2009 NSF study determined that of 900 higher education institutions
receiving r&D funding, 71 were HBCUs (Matthews, 2011).
advanced degRee PRogRams
In 2009, Louisiana’s Postsecondary Education review Commission approved 22 recommendations
for improving higher education. Among its recommendations was the elimination and merging of
over 300 academic programs, which the Board of regents promptly carried out (Louisiana Board
of regents, 2011). Calls for mergers and closures that disproportionately affect HBCUs reveal the
tendencyforuninformedlawmakersandstateleaderstofavorPWIsandflagshipsoverHBCUs
and other Minority Serving Institutions (MSIs). Although it may be useful to identify and equitably
eliminate duplicated programs and services, the merger or closing of institutions should be ap-
proached with strong caution. Implicit in this advice is to understand the historical commitment
these institutions have in maintaining social equality for those least likely to pursue higher educa-
tion due to their life’s circumstances.
The governors of Louisiana and North Carolina recently attempted to close or merge HBCUs with
PWIs. Arousing controversy, Louisiana’s Governor Bobby Jindal sought to merge Southern Uni-
versity at New Orleans with the University of New Orleans and then move the new institution into
the University of Louisiana System (HBCU Digest, 2011). While this plan did not materialize, many
graduate programs were eliminated.
In North Carolina, Governor Pat McCrory threatened to end Elizabeth City State University’s joint
pharmacy program with UNC Chapel Hill. He cited dwindling enrollment and an inferior educa-
tion. Widespread opposition prevented the Governor from carrying out this proposal. yet the
messagewasclear:flagshipinstitutionsovershadowsmallercollegesanduniversitiesregardless
of the vital purposes they serve (HBCU Digest, 2012).
In his 2008 report, Minor discussed the ongoing issue of program duplication and its conse-
quences for HBCUs, arguing that the core of the problem with program duplication is that state
governmentsfavorflagshipcollegesanduniversities(Minor,2008).Withthecurrenthigher
education barometer heavily favoring efficiency, many policymakers and higher education leaders
are proposing to eliminate what they view as unnecessary duplicate programs. The deafening
chorus of efficiency champions often drowns out a more careful analysis of the purposes of these
programs. As seen in Louisiana, North Carolina, and other states, the programs usually lobbed
onto the budgetary chopping block are in smaller institutions such as HBCUs.
Another aspect of the program duplication issue involves larger institutions being allowed to offer
graduate programs that are already available in HBCUs. When a PWI located an hour’s drive from
an HBCU creates the same master’s or doctoral program, it jeopardizes the HBCU by taking away
its competitive edge (U.S. Commission on Civil rights, 2010).
The issue of program duplication stems from a more systemic problem. Program approval varies
by state. In Alabama, Louisiana, Mississippi and North Carolina, a state-level higher education
governing board decides the fate of advanced degree programs (usually in public institutions). A
U.S. Commission on Civil rights report roots it in the “political nature of program distribution”
(63). The report suggested that the issue of program duplication warranted Title VI review. Each
state varies as to how academic programs are approved or discarded. State legislatures often play
a pivotal role, especially in states where the legislature controls the purse strings for these institu-
tions. The Commission suggested that the current context for HBCUs losing or being unable to
form new graduate programs is tantamount to the conditions that inspired the Adams case. In its
view, these actions could be interpreted as direct violations of desegregation policies (U.S. Com-
mission on Civil rights, 2010).
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ameRica’s PUBlic hBcUs: A FOUr STATE COMPArISON OF INSTITUTIONAL CAPACITy AND STATE FUNDING PrIOrITIES
C O M PA r I S O N S
Alabama is representative of the growth of graduate programs in HBCUs in the past 5 years.
Alabama’s HBCUs gained only one new graduate program (a master’s in applied technology at
Alabama State University) in 2011-12. PWIs fared better, with the University of Alabama in
Huntsville garnering three master’s programs and its Troy location adding two graduate programs
(ACHE, 2011).
Alabama and Mississippi HBCUs have roughly the same number of graduate programs as they did
in 2008. Most Louisiana institutions—especially HBCUs—have fewer graduate programs than they
did in 2008. There have been some changes in North Carolina, with variation in the creation and
closingofHBCUgraduateprograms.UNC-ChapelHill,thestate’sflagship,hasseensubstantial
increases.
Graduate enrollment in all HBCUs in the states within this study is dwarfed by enrollment
inPWIs.SinceHBCUstendtobesmallerthanmanyoftheirPWIpeers(especiallyflagship
institutions), their graduate programs are generally likewise smaller. yet it is important to note
the power of graduate programs. They attract students, prestige, and funding to an institution.
Given the constant cutting of state appropriations, HBCUs depend on tuition revenue generated
by these programs.
In order to increase capacity for meeting future economic and employment goals, it is impera-
tive that HBCUs receive the attention and funding necessary to graduate underserved students,
especially at the graduate level. Most of the HBCUs in this study offer graduate-level education.
Advocating for increased graduate education at these institutions does not risk mission creep, as
some critics allege: according to the Carnegie Classification, they are considered graduate degree
granting institutions.
moving FoRwaRd
This report demonstrates the enduring importance of James T. Minor’s research on disparities
in state and federal funding to HBCUs. Quantitative analysis of enrollment, appropriations, and
advanced degree programs of the past decade reveal the consequences of an allocation system
favoring PWIs over HBCUs. The statistics are sobering, yet they are not uniformly negative. There
has been demonstrable growth in some areas of enrollment, funding, and graduate programs. Data
obtained from NCES reveal the strengths of HBCUs in graduating African American students, as
these highlights reveal:
• Alabama’stwopublicHBCUsawardedatotalof1,153bachelordegreesin2011toAfricanAmerican students. This was almost 30% of all bachelor’s degrees conferred to African American students in the state’s public institutions (a total of 4,092 African American stu-dents received bachelor’s degrees in Alabama public institutions) in 2011.
• Louisiana’sthreepublicHBCUsawarded1,561(outofapublicstatewidetotalof3,949)bachelor’s degrees in 2011 to African American students. This was 40% of all such degrees conferred to African American students in public institutions.
• InMississippi,threepublicHBCUsconferredatotalof1,587bachelor’sdegreestoAfricanAmerican graduates out of 3,255 in 2011. This amount was half of all undergraduate de-grees awarded to African Americans in Mississippi from public institutions.
• NorthCarolina’sfivepublicHBCUsawarded3,706degreestoAfricanAmericanstudents.This was far more than the total amount for all PWIs in the state (2,507). North Carolina’s five public HBCUs conferred 60% of bachelor’s degrees from public institutions to African Americans in the state in 2011.
The increase in non-African American racial and ethnic groups in HBCUs warrants additional
investigation. NCES categories are overly broad and preclude a necessary closer examination of en-
rollment patterns of Asian Americans, Pacific Islanders, Native Alaskans, Hawaiians, and American
Indians individually. The increase in Latino and nonresident aliens illustrates the demand for HBCUs
among other racial and ethnic groups. Taken together, these increases bolster the argument for the
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ameRica’s PUBlic hBcUs: A FOUr STATE COMPArISON OF INSTITUTIONAL CAPACITy AND STATE FUNDING PrIOrITIES
acceptance of an expanded mission for the nation’s HBCUs. The shifting demographics and long-
term trajectory confirm that HBCUs would benefit from opening their doors and welcoming the
new faces that are clearly seeking an HBCU education. Additional research is also needed into the
enrollment pattern of White students in HBCUs. Are most from low-income backgrounds? Do they
choose HBCUs because of the price tag, the location, the opportunities, and/or the inclusiveness?
State funding mechanisms demand review and revision. Many states are moving towards funding
higher education institutions based on those institutions meeting performance goals. While the
trend towards rewarding efficiency and productivity is likely to grow, state governments must be
mindful of the potential limitations of this funding method. Mississippi could offer a hybrid-perfor-
mance funding model that does not punish institutions failing to meet performance goals. But the
effects of that state’s new funding formula have yet to be determined. Still, the implementation of
a new funding mechanism reveals the possibility for state governments to experiment with differ-
ent funding formulas that could be a boon for HBCUs and all higher education institutions.
The inequity in federal funding and research money channeled to HBCUs requires attention and
redress. The White House Initiative on HBCUs has the power and potential to capitalize on the
mission of HBCUs and improve the lives of innumerable students. Similarly, national organizations
could do much more to contribute to and maximize the research capabilities of many HBCUs.
Five RecommendaTions FoR sTaTe goveRnmenTs
sTaTe goveRnmenTs shoUld exPloRe alTeRnaTives To enRollmenT-dRiv-
en FUnding mechanisms. Minor (2008) suggested North Carolina’s Focused-Growth
Initiative as a more equitable funding alternative. The UNC Board and General Assembly targeted
$420 million to seven institutions (including all of the state’s HBCUs) to boost enrollment, facili-
ties, and programs. The new model being employed in Mississippi could also offer a more equitable
funding option.
sTaTe goveRnmenTs mUsT Recognize The eFFicacy and Relevance oF
hBcUs. Many representatives from assorted states continue to demonize HBCUs or question
their continued existence. They must acknowledge HBCUs’ accomplishments, ongoing missions,
and real potential in supporting states’ workforce goals if provided the appropriate and equitable
support.
sTaTes shoUld assess PRogRam dUPlicaTion caReFUlly. State governments
must be cognizant of the importance of HBCU graduate program offerings. These should not be
eliminated ad hoc during periods of economic distress in favor of similar PWI graduate programs.
sTaTes mUsT sUPPoRT hBcUs in develoPing TheiR FUndRaising caPaciTy.
The Focused-Growth Initiative in North Carolina represents both an alternative funding mecha-
nism as well as a means of state government allocating funding for specific improvements.
sTaTe goveRnmenTs shoUld FosTeR PaRTneRshiPs BeTween hBcUs and
Pwis. This need not be a one-sided relationship with either party assuming complete authority.
Shared responsibility for graduate programs is one possibility already in existence.
12
ameRica’s PUBlic hBcUs: A FOUr STATE COMPArISON OF INSTITUTIONAL CAPACITy AND STATE FUNDING PrIOrITIES
Five RecommendaTions FoR hBcUs
hBcUs woUld BeneFiT FRom sTRengThening TheiR FUndRaising caPaciTy,
PaRTicUlaRly given The likelihood oF decReased sTaTe aPPRoPRiaTions.
Key here is for HBCUs to master the art of philanthropy. A crucial strategy is to develop and nur-
ture a climate of giving among current students and young alumni.
hBcUs shoUld devise cReaTive and eFFecTive maRkeTing and PUBlic
RelaTions camPaigns. They must work to counteract the frequent negative portrayals
found in major media. HBCUs should articulate and share the stories and accomplishments from
the members of their communities.
hBcUs shoUld conTinUe To aPPly FoR FedeRal sUPPoRT FoR ReseaRch. Ac-
cording to a Congressional research Service report, HBCUs comprise 6% of all higher education
institutions receiving research funding (Matthews, 2011).
hBcUs woUld BeneFiT FRom FURTheR emBRacing diveRsiTy. This report indi-
cates a significant increase in non-Black racial and ethnic groups enrolling in HBCUs (particularly
Latino students). It is important for HBCUs to not only welcome these students, but to actively
reach out to them.
hBcUs shoUld seek PaRTneRshiPs wiTh Pwis and oTheR hBcUs. Such rela-
tionships need not diminish the powerful role HBCUs play within their states and the nation. The
joint nursing program between Elizabeth City State University and UNC Chapel Hill offers an
example of such an effective partnership.
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